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HOUSING  SURVEY 


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Commission  of  Immigration  and  Housing 
of  California 

Underwood  Building,  525  Market  Street 
San  Francisco,  Cal. 


JANUARY,  1916 


v 


HOUSING.  3 

A  PLAN  FOR  A  HOUSING  SURVEY. 
INTRODUCTION. 

The  plan  here  presented  for  making  a  survey  of  housing  conditions 
in  a  city  or  town  does  not  include  the  survey  of  conditions  bearing  upon 
a  city  plan.  City  planning  is  a  technical  subject,  and  preliminary 
surveys  looking  toward  constructive  city  planning  work  in  any  city 
should  be  undertaken  by  an  expert  city  planner  employed  by  a  city 
planning  commission.  In  fact  the  first  task  that  will  confront  any  city 
planning  commission  created  under  the  provisions  of  the  state  city 
planning  law,  chapter  428  of  the  Statutes  of  1915,  will  be  a  survey  of 
existing  conditions  and  this  Commission  can  not  presume  to  furnish  a 
plan  of  survey  which  would  be  applicable  to  any  city  or  town — especially 
when  the  plan  wrould  be  furnished  to  an  expert  or  experts  who  should 
be  more  familiar  with  the  literature  and  theories  of  city  planning  than 
is  this  Commission. 

The  plan  here  submitted  is,  therefore,  limited  strictly  to  a  survey  of 
existing  housing  conditions  with  reference  principally  to  the  construc- 
tion and  sanitation  of  dwelling  houses. 

THE  PLAN. 

I. 
EDUCATION. 

The  first  essential  thing  is  that  the  group  or  organization  interested 
in  making  a  survey  should  get  a  clear  idea  of  what  housing  means,  and 
what  those  working  for  better  housing  are  trying  to  accomplish.  There 
are  many  bad  housing  conditions  which  are  not  quite  so  dangerous  and 
serious  as  they  might  appear  to  the  beginner.  Moreover,  the  beginner 
in  housing  is  apt  to  jump  at  conclusions  and  seize  upon  any  suggested 
remedy  when  emotionally  moved  by  insanitary  and  bad  housing  con- 
ditions. In  this  connection  Mr.  John  Ihlder  of  the  National  Housing 
Association  says:  "For  instance,  it  very  often  happens  that  those  who 
find  in  their  own  community  dilapidated  hovels  and  shacks  are  prone 
to  advocate  the  building  of  model  tenements.  Yet  the  coming  of  these 
model  tenements  would  in  the  long  run  work  the  city  far  more  injury 
than  the  continuance  of  the  present  insanitary  hovels  and  shacks  which, 
after  all,  may  be  wiped  out  with  comparatively  small  effort  once  the 
community  has  made  up  its  mind  to  do  so.  The  tenements,  on  the  other 
hand,  once  established  remain  practically  forever." 

The  first  suggestion,  therefore,  is  that  those  who  plan  to  undertake 
a  housing  survey  should  begin  by  carefully  studying  some  of  the 
housing  literature  listed  in  the  bibliography  of  the  "A.  B.  C.  of  Hous- 
ing," published  by  this  Commission  and  which  will  be  sent  free  on 
request. 


COMMISSION   OP   IMMIGRATION   AND   HOUSING. 


ORGANIZATION. 

When  those  who  have  undertaken  the  work  are  fairly  familiar  with 
the  fundamental  problems  of  housing,  the  next  step  is  the  formation  of 
an  organization  for  a  survey  of  existing  housing  conditions.  There  are 
very  few  communities  in  the  State  in  which  any  citizens  or  even  the 
city  eouncilmen  or  the  health  officer  have  any  accurate  conception  of  the 
existing  housing  and  sanitary  conditions.  It  is,  therefore,  not  sur- 
prising that  there  are  so  few  well-defined  plans  for  constructive  housing 
and  sanitary  work  in  California  cities. 

(A)  The  people  who  undertake  to  conduct  or  stand  as  sponsors  for 
a  survey  should  be  gathered  together  in  some  sort  of  an  organization 
for  the  purpose.     This  organization  should  preferably  have  a  large 
representative  membership,  so  that  greater  influence  can  be  brought 
to  bear  in   arousing  public   sentiment   and  support  and   in   passing 
ordinances. 

(B)  The  general  management  of  the  housing  survey  should  be 
entrusted   to    a    rather   small   executive    committee.     This    committee 
should  be  made   absolutely  responsible  for  the  prompt  and  proper 
conduct  of  the  work. 

(C)  The  town  or  city,  or  the  part  thereof  that  is  to  be  surveyed, 
should  be  divided  into  districts,  with  a  member  of  the  executive  com- 
mittee in  charge  of  the  work  in  each  district. 

(D)  The  executive  committee  should  carefully  select  a  group  of 
volunteers  or  paid  workers  who  have  completed  the  course  of  study 
prescribed  above,  and  who  are  pledged  to  carry  through  the  work 
conscientiously  and  promptly. 

(E)  Some  one  person,  preferably  one  with  experience  in  housing 
work,  should  be  put  in  charge  of  the  workers  who  are  to  do  the  actual 
inspection.     This  person  should  train  the  workers  in  a  uniform  method 
of  inspection  and  in  the  making  of  reports.     Furthermore,  this  person, 
after  the  work  has  begun,  should  make  frequent  tours  in  the  scattered 
districts  to  check  up  the  work  of  the  inspectors. 

(F)  The  districts  above  mentioned  should  in  turn  be  split  up  into 
divisions  and  two  field  workers  should  be  assigned  to  inspection  in 
each  division.     Much  more  can  be  accomplished  by  two  people  working 
together  than  by  working  separately.     Especially  is  this  true  in  making 
measurements  and  in  collecting  general  statistics.     The  workers  should 
be  absolutely  restricted  or  limited  to  the  division  assigned  them. 

(G)  "When  the  working  force  has  been  organized  nothing  should  be 
done  in  the  way  of  inspection  until  the  workers  are  made  familiar 
with  all  the  state  laws  and  local  ordinances  affecting  the  sanitation, 
maintenance,  and  general  construction  of  houses.     The  workers  must 
know  the  legal  definitions  of  a  tenement  house,  a  hotel,  a  lodging  house, 


HOUSING.  5 

and  single  and  multiple  dwellings  other  than  tenements.  The  two  state 
laws  dealing  with  housing  conditions  which  must  be  carefully  studied 
are  the  State  Tenement  House  Act,  Chapter  572,  Statutes  of  1915,  and 
the  Hotel  and  Lodging  House  Act,  Chapter  695,  Statutes  of  1913. 
Inspections  made  by  workers  familiar  with  state  and  local  laws  will  be 
much  more  profitable  because  then  the  violations  of  these  laws  can  be 
reported  and  a  distinction  made  where  insanitary  conditions  are 
discovered  which  are  not  covered  by  law. 

There  should  be  careful  individual  study  of  the  laws  and  this  study 
should  be  supplemented  by  lectures  and  general  open  discussions  of 
the  various  laws  and  the  provisions  thereof. 

III. 

INSPECTION. 

When  the  field  workers  are  thus  broadly  informed  concerning  the 
general  problems  of  housing  and  concerning  the  housing  laws,  the  care- 
ful, methodical  work  of  inspection  should  begin. 

(A)  It  is  of  primary  importance  that  some  sort  of  housing  card  or 
blank  be  used  for  the  recording  of  the  facts  discovered.     General  state- 
ments that  such  and  such  houses  are  "in  bad  condition"  or  "insanitary" 
carry  no  weight  and  they  are  not  convincing.     Furthermore,  they  are 
not  comparable,  and  they  are  not  susceptible  of  statistical  treatment. 
Appended  to  this  plan  are  the  forms  used  by  the  State  Commission  of 
Immigration  and  Housing  in  reporting  inspections.     These  forms  do 
not  cover  all  the  sections  of  the  state  housing  laws  nor  do  they  cover 
the  provisions  of  local  ordinances.     They  do  cover,  however,  the  most 
important  violations  of  laws  and  the  worst  insanitary  conditions.     They 
can  be  easily  printed  on  cardboard  five  by  eight  inches  in  size. 

(B)  The  field  workers  should  be  carefully  instructed  how  to  fill  out 
the  cards  used.     It  would  probably  be  well  for  the  entire  group  to 
inspect  one  house  together,  or  separately,  and  fill  out  cards  thereon  by 
way  of  experiment.     Roughly,  any  cards  or  reports  which  are  used 
should  gather  definite  information  concerning  the  following  conditions : 

1.  Percentage  of  lot  occupied  by  building. 

2.  Size  of  yards  and  courts ;  distances  between  detached  houses. 

3.  Condition  of  streets  and  alleys  as  to  repair  and  cleanliness. 

4.  General  condition  of  yards. 

5.  Light  and  ventilation  of  rooms  and  halls. 

6.  State  of  repair  of  walls,  ceilings  and  floors. 

7.  Size  of  rooms  and  overcrowding  of  rooms. 

8.  Use  of  cellars  and  basements  for  living  purposes. 

9.  Drainage  of  cellar,  yard,  etc. 

10.  Use  of  surface  wells  and  relation  to  privy  vaults. 

11.  Provisions  for  sewer  and  running  water. 

12.  Plumbing  conditions — closed  or  open. 

13.  Condition  of  water-closets  or  privies. 

14.  Garbage  disposal  and  receptacles. 

15.  Stables  or  any  animals  on  premises. 

16.  Number  and  general  condition  of  fire  escapes. 


6  COMMISSION   OF   IMMIGRATION   AND   HOUSING. 

(C)  These  reports  above  mentioned  should  be  made  out  for  every 
house   (whether  the  outer  appearance  be  "good"  or  "bad")   in  the 
districts   where   intensive   surveys   are   to   be  made.     Several   square 
blocks,  at  least,  should  be  selected  for  such  intensive  surveys,  and  they 
should  include  the  homes  of  aliens  and  the  wage  earners  who  are  most 
open   to    exploitation    by    greedy    landlords.     Several   blocks   in    the 
"better"  districts  should  be  surveyed  for  comparison. 

(D)  In  addition  to  these  intensive  surveys,  a  survey  of  the  general 
housing  conditions  should  be  made  by  one  small  group,  or  by  the  head 
worker  mentioned  above.     This  survey  would,  necessarily,  be  super- 
ficial, and  touch  generally  upon  cleanliness  of  streets,  alley  conditions, 
cesspools  and  privy  vaults,  garbage  conditions,  general  appearance,  etc. 
In  this  general  survey  should  be  included,  where  possible,  statistics 
concerning  the  number  of  tenement  houses,  hotels,  and  lodging  houses, 
etc.,  in  the  city  or  town.     These  can  be  obtained  from  the  city  records, 
the  building  inspector,  health  department,  insurance  companies,  etc. 

IV. 
PUBLICITY  AND   EDUCATION. 

When  the  inspectors  have  covered  all  the  ground  possible  the  informa- 
tion and  statistics  which  have  been  gathered  must  be  compiled  and  put 
before  the  public  in  the  most  convincing  and  impressive  ways.  Above 
all  else  the  conclusions  and  tables  of  figures  must  be  absolutely  accurate ; 
exaggerations  or  figures  open  to  the  slightest  suspicion  must  be  ruth- 
lessly excluded.  To  quote  from  George  Thomas  Palmer,  with  reference 
to  civic  improvement:  "Our  evidence  must  be  complete,  and  we  must 
prove  every  count  in  our  indictment.  Our  story  must  be  consistent  and 
absolutely  truthful.  A  last  year's  bird's-nest  is  of  enormous  utility 
compared  with  an  exaggerating  or  lying  reformer,  and  the  oversensitive 
and  hypercritical  will  be  on  the  alert  to  find  inaccuracies  in  our  evi- 
dence. In  no  American  city,  so  far  as  I  know,  is  it  necessary  to  stretch 
the  truth  or  frame  our  charges  in  intemperate  words  to  prove  the 
necessity  for  civic  improvement." 

(A)  The  following  are  brief  suggestions  of  the  best  ways  in  which 
to  compile  the  facts:  (1)  Simple,  comparative  tables  of  figures,  show- 
ing the  number  of  totally  dark  rooms,  and  such  other  insanitary  condi- 
tions. (2)  Graphic  charts,  which  better  visualize  the  totals  of  figures. 
(3)  A  block  map  of  the  city,  containing  plats  of  the  blocks  surveyed 
with  the  insanitary  houses  indicated  by  a  uniform  coloring.  (4)  Sep- 
arate maps  of  the  individual  blocks  surveyed,  indicating  by  different 
colors  the  total  number  of  each  of  the  ten  or  twelve  worst  sanitary 
violations  in  the  block.  (5)  Chart,  showing  by  comparative  pyramids 
the  number  of  violations  of  existing  laws  or  ordinances,  and  the  num- 
ber of  violations  of  sanitary  rules  which  should  be  laws.  (6)  Charts 


HOUSING.  7 

or  maps,  showing  the  compartive  death  rates  of  children  and  adults  in 
the  districts  surveyed,  and  their  relation  to  housing.  (7)  And,  most 
important  of  all,  panels  of  photographs  of  the  actual  conditions,  for 
photographs  carry  more  conviction  than  even  figures  and  maps.  No 
expense  should  be  spared  in  employing  professional  photographers  to 
accompany  the  inspectors  occasionally  to  get  the  clearest  possible 
photographs  of  interiors  and  exteriors. 

(B)  The  material  so  compiled  should  then  be  given  the  widest 
publicity  and  used  in  every  conceivable  way  to  educate  the  community 
and  make  it  appreciate  the  need  of  improvement.  (1)  The  wide  dis- 
tribution of  a  brief  and  not  wordy  report  containing  a  large  number 
of  photographs  and  all  the  tables  and  charts,  is  probably  the  first  step. 
(2)  Wide  and  persistent  publicity  should  be  given  to  the  report  in  the 
local  press  in  spite  of  the  opposition  of  "boosters"  clubs — for  "con- 
cealment is  ultimately  expensive."  (3)  An  attractive  exhibit  on  panels 
should  be  installed  in  a  centrally  located  public  hall  or  vacant  store — 
this  to  be  supplemented  by  a  small  "feeder"  or  advertising  exhibits  in 
shop  windows.  (4)  Public  meetings  with  lectures  should  be  held  in 
connection  with  the  exhibit,  and  speakers  should  give  lectures,  illus- 
trated by  lantern  slides,  before  every  local  club  or  organization.  (5) 
Influential  groups  of  citizens,  particularly  newspaper  editors,  legisla- 
tors, councilmen,  labor  leaders,  business  men,  and  club  women,  should 
be  taken  to  see  some  of  the  typical  housing  conditions. 

V. 
LEGISLATION. 

Before  an  anticlimax  is  reached  in  this  campaign  of  publicity  or 
education,  there  must  be  a  careful  directing  of  the  forces  of  the  move- 
ment to  accomplish  a  definite  object — the  passage  of  remedial  legisla- 
tion. (Note:  In  some  rare  instances  it  may  be  found  that  no  new 
housing  regulations  are  required — that  the  only  difficulty  lies  in  securing 
the  enforcement  of  existing  regulations.  This  will  be  a  rare  situation 
among  California  cities  or  towns,  however.)  The  drafting  of  housing 
laws  is  a  technical  and  difficult  undertaking.  Wherever  possible  an 
expert  should  be  employed.  At  any  rate  the  laws  or  ordinances  of 
other  states  and  cities  should  be  carefully  studied  in  order  to  derive  all 
possible  benefit  from  the  experience  of  other  communities,  and  such 
laws  modified  to  apply  to  the  slightly  different  conditions  that  may  be 
found.  It  may  be  possible  to  set  "impractical"  or  "foolishly  high" 
standards,  but  this  danger  is  not  so  serious  as  the  possibility  of  setting 
standards  which  are  too  low.  The  standards  must  not  be  considered 
merely  with  reference  to  existing  conditions;  they  should  be  fixed  to 
prevent  the  growth  of  evil  housing  conditions  or  problems  in  the 


8  COMMISSION   OF   IMMIGRATION   AND   HOUSING. 

future.  All  the  public  sentiment  and  support  which  may  have  been 
aroused  by  the  exposure  of  existing  conditions  will  be  needed  to  force 
through  adequate  legislation. 

VI. 
LAW   ENFORCEMENT. 

The  last  step  in  the  program  in  the  field  of  housing  covered  by  this 
survey  plan  is  to  secure  the  enforcement  of  housing  laws — old  and  new. 
To  quote  from  Lawrence  Veiller's  "Housing  Programme" — "Having 
secured  legislation,  many  housing  reformers  think  they  have  accom- 
plished what  they  sought  to  do,  whereas,  in  fact,  they  have  just  begun. 
Heretofore  they  have  been  preparing  the  soil,  and  this  is  seedtime, 
not  harvest.  If  they  want  to  get  the  fruits  of  their  efforts  they  must  be 
prepared  to  stay  at  the  work  for  many  years  to  come.  How  often 
have  we  seen  important  laws  completely  nullified  through  lack  of 
enforcement.  Housing  reform  in  this  respect  differs  somewhat  from 
other  great  social  causes,  inasmuch  as  there  is  always  an  interested 
opposition  ready  to  take  advantage  of  the  slightest  relaxation  on  the 
part  of  the  community.  Eternal  vigilance  is  indeed  the  price  of 
liberty  in  this  field."  The  laws  "are  sure  to  be  not  properly  enforced 
unless  the  people  responsible  for  them  do  stand  by  to  prod  and  aid  the 
public  officials." 

(A)  The  organization  which  conducts  the  survey  should  therefore 
become   permanent   and   keep   regularly   in   touch   with   the   housing 
situation. 

(B)  Aid  should  be   given   the   public   officials   charged   with   the 
enforcement  of  the  housing  laws  in  the  following  ways:   (1)   Organize 
sympathetic,  moral,  and  even  financial  support  to  back  the  officials  in 
enforcing  the  laws.     (2)  Attempt  to  reach  and  educate  recalcitrant 
builders  and  owners  so  as  to  secure  their  co-operation  rather  than  their 
opposition.     (3)  Organize,    support,    and    secure    adequate    staffs    of 
inspectors  and  adequate  appropriations  for  all  departments  charged 
with  enforcing  the  laws.     (4)   Semiannual,  general  inspections  by  com- 
mittees to  check  up  and  report  violations  and  to  observe  the  efforts 
used  to  enforce  the  laws. 

VII. 
CONCLUSION. 

The  plan  outlined  above  deals  largely  with  amelioration  of  conditions. 
Some  organizations  may  be  interested  in  going  on  into  the  more  con- 
structive fields  of  housing,  such  as  community  housing,  garden  cities, 
city  planning,  etc.  The  Commisison  would  be  glad  to  correspond  with 
organizations  or  individuals  regarding  these  subjects. 


HOUSING. 


APPENDIX. 


The  following  are  reproductions  of  the  Tenement,  Hotel  and  Lodg- 
ing, and  Family  Dwelling  cards  used  by  the  Commission  of  Immigra- 
tion and  Housing.  They  can  be  reproduced  on  cardboard  5  by  8  inches 
in  size.  It  is  recommended  that  the  back  of  the  cards  be  left  blank 
for  additional  remarks  by  the  inspectors. 


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University  of  California 

SOUTHERN  REGIONAL  LIBRARY  FACILITY 

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16  COMMISSION   OF   IMMIGRATION   AND   HOUSING. 


THE  COMMISSION  INVITES  CORRESPONDENCE  CONCERN- 


SUGGESTIONS. 

IF  A  COMMUNITY  NEEDS  ASSISTANCE  IN  ORGANIZING 
AND  STARTING  A  SURVEY,  THE  COMMISSION  WILL  LEND 
THE  SERVICES  OF  AN  EXPERT  WHENEVER  PRACTICABLE. 


COMMISSION   OF   IMMIGRATION   AND   HOUSING 
OF  CALIFORNIA. 

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